BTI 2014 | Pakistan Country Report

Status Index

1-10

3.70

# 112 of 129

Political Transformation

1-10

3.53

# 110 of 129

Economic Transformation

1-10

3.86

# 111 of 129

Management Index

1-10

3.10

# 117 of 129

scale

score

rank

trend

This report is part of the Bertelsmann Stiftungs Transformation Index (BTI)

2014. It covers the period from 31 January 2011 to 31 January 2013. The BTI
assesses the transformation toward democracy and a market economy as well
as the quality of political management in 129 countries. More on the BTI at
http://www.bti-project.org.
Please cite as follows: Bertelsmann Stiftung, BTI 2014 Pakistan Country
Report. Gtersloh: Bertelsmann Stiftung, 2014.
This work is licensed under a Creative Commons Attribution 4.0 International
License.

BTI 2014 | Pakistan

Key Indicators
Population

Pop. growth1

% p.a.

1.7

Life expectancy

years

66.3

UN Education Index

0.397

Poverty3

60.2

36.5

Gender inequality2

0.567

Aid per capita $

16.4

Urban population %

179.2

HDI
HDI rank of 187

0.515
146

GDP p.c.

Gini Index

2890.6
30.0

Sources: The World Bank, World Development Indicators 2013 | UNDP, Human Development Report 2013. Footnotes:
(1) Average annual growth rate. (2) Gender Inequality Index (GII). (3) Percentage of population living on less than $2 a
day.

Executive Summary
During the review period, Pakistan dealt with a series of crises. The debate over the responsibilities
and political supremacy of individual institutions the Supreme Court, the presidency, the prime
minister and the cabinet, as well as the army was an ongoing struggle. Various armed rebellions
challenged the state, such as activities by the Tehrik-i-Taliban Pakistan (TTP, or Pakistan Taliban)
in tribal areas, the rebellion in Baluchistan, the deteriorating security situation in Karachi and
overall sectarian violence. These events affected Pakistans economic development, which during
the review period saw no noticeable improvement.
Civilian institutions, such as the government, the judiciary and the army, were embroiled in various
controversies over their respective roles and responsibilities. Despite internal struggles, the
government was able to complete its term of office. Moreover, despite the persistent conflict, the
army has shown no inclination of staging another coup dtat. Yet neither the government nor the
parliament holds political power over the armed forces, as the armed forces are largely autonomous
and play an important role in foreign policy decision-making, especially vis--vis the countrys
relationship with India and Afghanistan. The army during the review period declared terrorism to
be Pakistans main challenge, thereby shifting its main security focus from its traditional enemy,
India, to domestic concerns.
The security situation in Pakistan remains a challenge. Fighting between the armed forces and the
TTP in tribal areas on the Afghani border has also led to further attacks on the TTP and its allies
in other provinces. Additionally, the armed rebellion in Baluchistan grew in intensity and has led
to severe human rights violations. The security situation in Karachi, Pakistans biggest city and
economic hub, has deteriorated following clashes between different armed groups and the armed
forces attempts to combat them. There was a marked increase in sectarian violence perpetrated
by militant Sunni groups against Shia groups and other religious minorities. Militant Sunni groups
also have links with the TTP and al-Qaeda cadres.

BTI 2014 | Pakistan

The countrys economic situation worsened during the review period. Although GDP growth
increased from 3% in 2011 to 3.7% in 2012, the government did not achieve its target of 4.2%.
The population is suffering under inflationary economic conditions and with a severe energy crisis
which has also affected the capital, Islamabad. In reaction to gas and power shortages, citizens
have rioted against government institutions in many cities. A lack of economic reforms, for
instance the governments failure to broaden the tax base, rising energy import bills and dwindling
foreign direct investment, has caused an increase in Pakistans total debt to more than PKR 15
trillion, accounting for more than 68% of GDP in 2012. One positive economic development was
that Pakistan granted India most-favored nation (MFN) status in January 2013. This change should
increase trade between both countries and should help to increase societal and political interaction.

History and Characteristics of Transformation

Pakistans political development, since independence in 1947, has been shaped by three different
struggles. The first struggle was the conflict between the military and democratic forces over the
countrys political system; the second was the conflict among different ethnic groups over issues
of participation and autonomy in the newly created state; and third was the controversy over the
role of religion in state and society.
Authoritarian rule maintained by the bureaucracy and the military after the first coup in 1958 could
not bridge the gap between eastern and western Pakistan. The first parliamentary elections in
December 1970 brought an overwhelming victory to the eastern Pakistan-based Awami League
(AL). The military and political leadership of western Pakistan was not interested in transferring
power, which led to a civil war in eastern Pakistan. The Indian intervention in December 1971
resulted in the defeat of the Pakistani army and the independence of eastern Pakistan, which then
became the state of Bangladesh.
Zulfikar Ali Bhutto, founder of the Pakistan Peoples Party (PPP), became president and after the
promulgation of the new constitution in 1973, became the first prime minister of the new state of
Pakistan. He propagated the concept of Islamic socialism to increase the legitimacy of the new
state. But land reforms were delayed so the countrys feudal structure continued, and the
nationalization of banks and key industries did not yield economic results. The new state of
Pakistan was faced with similar threats as smaller ethnic groups resented the dominance of the
Punjab. After protests against rigged elections in 1977, the army under General Muhammed Ziaul-Haq again took over the government.
Zia-ul-Haq pursued a policy of Islamization of state and society to broaden the legitimacy of his
regime. He benefitted from Pakistans geostrategic importance after the Soviet invasion of
Afghanistan in December 1979. As in the 1950s, Pakistan became again for American foreign
policy a key state in the containment of the Soviet Union and a main recipient of Western
assistance. The Afghan mujahedeen were trained by Pakistans Inter-Services Intelligence (ISI) to

BTI 2014 | Pakistan

fight the Soviet Union in Afghanistan. In this period, Pakistan was also able to nurture its nuclear
program. Zia-ul-Haq promoted a liberal economic policy and open Pakistan to the global
economy. After he died in a plane crash in August 1988, Benazir Bhutto, who led the PPP after
the death of her father, won the elections in November that same year.
Pakistans second period of democracy, from 1988 to 1999, was marked by the interference of the
armed forces and internal power struggles among the main political parties. The military supported
Nawaz Sharif and his Pakistan Muslim League-Nawaz (PML-N), which became the main
contender against the PPP. Because of the power struggle between the two parties, no elected
parliament, neither by the PPP (1988 to 1990 and 1993 to 1996) nor by the PML-N (1990 to 1993
and 1997 to 1999), could finish its term of office. The army remained the most important domestic
arbitrator and dominated security and foreign policy, especially vis--vis India and Afghanistan.
Pakistan became internationally isolated during the 1990s. In 1990, the United States imposed
sanctions because of Pakistans nuclear program, so that the former ally turned into a pariah
overnight. A nuclear test in May 1998 and a military coup in October 1999, which installed
General Pervez Musharraf to power, further increased Western sanctions. Pakistans status as a
frontline state was renewed after 9/11, as the subsequent war against terror put Pakistan in a
decisive position as part of American foreign policy. Pakistan initially gave up its support for the
Taliban regime and received massive military and economic support in return.
Musharrafs rule was opposed by the PPP and the PML-N, but supported by religious parties. He
initiated a policy of economic liberalization and gave more freedom to private media. Pakistan
allowed Afghani Taliban, which fought North Atlantic Treaty Organization-International Security
Assistance Force (NATO-ISAF) troops in Afghanistan, safe havens in tribal border regions.
Because of Pakistans support for the United States, the Pakistani Taliban started to fight the
military and promoted a policy of Talibanization of state and society in Pakistan. In 2007, the
domestic crisis in Pakistan was heightened first with a siege of the Red Mosque in Islamabad by
radical Islamists and further by General Musharrafs attempt to sack Chief Justice Iftikhar M.
Chaudhry, which initiated the lawyers movement as the main domestic political opposition that
culminated in Musharrafs proclamation of a state of emergency in November 2007. In February
2008, the PPP won parliamentary elections under Asif Ali Zardari, the husband of Benazir Bhutto,
who was assassinated in December 2007 during the election campaign. In September 2008,
Zardari was elected president after Musharraf stepped down. The 2008 global financial crisis and
the 2010 floods created an economic crisis from which Pakistan has not yet recovered.
Among the few political achievements during the review period was the 18th constitutional
amendment, passed in 2010, which transformed Pakistan again into a parliamentary democracy,
transferring power from the president to the prime minister, and gave the provinces more
autonomy.

BTI 2014 | Pakistan

The BTI combines text analysis and numerical assessments. The score for each
question is provided below its respective title. The scale ranges from 1 (worst) to
10 (best).

Transformation Status

I. Political Transformation
1 | Stateness

More than 60 years after independence, the states monopoly on the use of force is
still challenged by a variety of non-state actors in different parts of the country. The
most serious challenge during the review period was by the Tehrik-i-Taliban Pakistan
(TTP) with their attacks on army and state institutions in tribal regions, and also in
Khyber Pakhtunkhwa (KP) and the Punjab. The Pakistani army has deployed more
than 140,000 soldiers in the fight and has suffered more than 4,000 casualties as of
the time of writing. Security forces have gained control over most of the tribal areas,
but are reluctant to start a major operation in Northern Waziristan, which is regarded
as a militant stronghold. The tribal population is also affected by infighting among
different militant groups. A similar threat to the state is posed by militant Sunni
groups such as the Lashkar-e-Jhangvi (LeJ), that call for the Islamization of state and
society and that are responsible for attacks on the Shia minority in parts of Pakistan.
A different challenge comes from separatist Baluch groups that are fighting for an
independent state, attacking military installations and gas pipelines. Paramilitary
organizations such as the Frontier Corps are accused of human rights violations and
are believed responsible for a large number of missing persons. The Supreme Court
has taken up the issue, and the government has announced large-scale support to
address the grievances of the Baluch population.
The various conflicts culminated in armed clashes in Karachi, the economic hub of
Pakistan. The year 2012 was the deadliest in Karachi in the last two decades, with
more than 2,000 people killed as a result of fighting among different ethnic groups,
criminal gangs and political parties. Karachi is home of the Mohajirs community,
descendants of Indian migrants in 1947, which have their own identity and are
represented by the Muttahida Qaumi Movement (MQM). Karachi has also the largest
Pashtun population, which leads the secular Awami National Party (ANP) to demand
a greater share in political representation vis--vis the other communities. In recent

Question
Score

Monopoly on the
use of force

BTI 2014 | Pakistan

years, the city has also seen a growing Talibanization in some quarters, which has
added a new conflict dimension to already existing battle lines.
The debate over state identity is shaped by different concepts. Muhammad Ali Jinnah,
as the founding father of Pakistan, preferred a moderate and modern Muslim state,
whereas more religious parties have always pushed for a stronger Islamization of state
and society. In contrast, ethnic groups have demanded greater autonomy or even
independence, such as in eastern Pakistan or Baluchistan. The military has also used
Islam to broaden its legitimacy and has nurtured the conflict with India to strengthen
the identity of the state. Religious parties have never played an important role in
democratic elections. Recent surveys show a growing trend for religious ideas which
is interrelated with economic development and the creation of a middle class. Islam
in Pakistan is highly fragmented; a majority of the population is Sunnis, while 15%
to 20% is Shia. Moreover, the Sufi tradition (holy men) has great attraction in the
rural areas.

State identity

In addition, ethnic grievances between the Punjabi majority and Sindhis, Pashtuns
and Baluchis have led to various conflicts.
The preamble of the constitution defines Pakistan as an Islamic republic, in which
sovereignty comes from Allah and is exercised by the people of Pakistan within the
limits prescribed by Him. The tension between the will of a god and the will of the
people has created various controversies between liberal and religious segments of
society. The constitution gives preference to Muslims, whereas members of religious
minorities are barred from various official positions. Shariah laws were introduced
but remains to a large extent under the control of civilian courts, so that secular
principles override religious law when both are at variance. The anti-blasphemy
provision of the criminal code is often used against religious minorities and political
opponents. Various militant religious groups are agitating for stronger Islamic rule
and are responsible for attacks against the Shia or the Ahmadiyya minority.
Prominent victims were Governor Salman Taseer and Minister for Minority Affairs
Shabaz Bhatti, who both were assassinated in January and March 2011, respectively.
The Pashtun and Baluchi tribal populations in rural areas follow their own legal
codes, which include tribal and Islamic traditions.

No interference of
religious dogmas

Pakistan maintains a bureaucratic apparatus for all administrative duties; yet suffers
from a low level of implementation and poor state of delivery. The bureaucratic
activity is limited by limited public resources and the politicization by political
parties, which use the public administration and corporations to provide jobs to loyal
individuals. Salaries are low, which results in rampant corruption. Many public
services, such as health care, are formally free but can only be used through a system
of informal payments. The army is regarded as the most effective institution in the
country, but is also plagued by corruption and interference into politics.

Basic
administration

BTI 2014 | Pakistan

The 18th constitutional amendment shifted the power focus from the center to the
provinces. However, what is lacking is a concept of how to implement the provisions
which gave more autonomy to provincial governments over health care, labor issues
and education. Provincial administration is mostly overstaffed as a result of partisan
favors, and is therefore often characterized by a lack of professionalism. Remote
areas such as Baluchistan and interior Sindh are traditionally beyond the reach of the
state. Because of constitutional regulations, there exists hardly any basic
administration in the federally administered tribal areas (FATA). The main
weaknesses of state administration are in policing and tax collection. In both areas
public confidence is low and corruption is widespread. National and provincial
governments have been reluctant to introduce far-reaching reforms in either area.
Basic administration has slightly improved in the period under review, but remains
highly deficient

2 | Political Participation

The 2008 parliamentary elections were regarded to be free and fair by most national
and international observers. The next election in 2013 will be the first government
switchover after a complete parliamentary term in the history of the country. Election
results are often marred by pre-poll rigging, threats by militant groups and illegal
practices by candidates.

Free and fair

elections

The election commission has received greater independence and will bar candidates
for the 2013 elections who have not paid taxes, who hold dual nationality or who
have faked educational degrees. A code of conduct should set guidelines for election
campaigning. A new delimitation of constituencies in megacities such as Karachi is
necessary but has to be postponed because of security reasons. Minority groups hold
10 seats in parliament, and 60 seats are reserved for women.
The 18th amendment has shifted the constitutional balance in favor of the prime
minister. The president now has only a symbolic function as the head of state. But
President Zardari still exercises strong political influence, as he is the acting party
chief of the ruling Pakistan Peoples Party (PPP). The Supreme Court pressed the
government to act against President Zardari on corruption charges. But as the
government was not willing to follow court orders so that Prime Minister Gilani was
forced by the Supreme Court to step down in summer 2012. The power of the
government in foreign and security matters especially vis--vis India, Afghanistan
and the United States is constrained by the interests of the army. There is no civilian
control over the military; for instance, there is no parliamentary oversight over
defense expenditures or intelligence organizations. In rural areas, feudal and tribal
structures still hold important veto powers against state authority.

Effective power to
govern

BTI 2014 | Pakistan

The right of association and freedom of assembly are guaranteed by the constitution.
The large number of non-governmental organizations (NGOs), which address a range
of issues from childrens and womens rights to issues pertaining to HIV/AIDS as
well as religious and environmental issues, are proof of these freedoms. The party
system includes mass parties, such as the Pakistan Peoples Party (PPP) and the
Pakistan Muslim League-Nawaz (PML-N), regional parties like the Awami National
Party (ANP) and the Muttahida Qaumi Movement (MQM) and religious parties such
as Jamiat-i Ulema-i Islam (JUI) and Jamaat-i Islami (JI). The long march of the
moderate cleric Muhammad Tahir-ul-Qadri, who challenged the government in
January 2013, articulated a variety of economic and social grievances but which still
remained peaceful underlines that the right of association is possible in Pakistan even
amid difficult political circumstances. Even as oppositional groups are not
systematically disabled. The problems of implementation in effective association and
assembly rights have more to do with the general weakness of the states monopoly
on the use of force, de facto constraints on these rights in areas under de facto control
by powerful conservative forces (i.e., landowners, military) and, of course, the
widespread problems of criminal and political violence.

Association /
assembly rights

The liberalization of electronic media under General Musharraf brought an enormous

expansion of the media sector. Today, more than 100 TV channels are registered,
including five major stations in English. There are a large number of vernacular
newspapers, the circulation of which is much higher than that of English newspapers,
restricted mostly to the urban middle classes. Twenty-four-hour news channels and
daily talk shows are now part of Pakistans political life, and have increased the
pressure on politicians with regard to accountability.

Freedom of
expression

There are no outright media prohibitions in Pakistan, with the important exception of
some religious matters. A number of media outlets are openly hostile to the
government, and ruling parties are able to articulate their opinions. However, freedom
of expression is threatened by several factors. Blasphemy laws can also be used
against the press, so that on occasion, the government comes under political pressure
to act against parts of the media. Social networks like Facebook or YouTube are
partly banned over sensitive content. Media freedoms and the work of journalists are
also threatened by domestic conflicts, internal warfare and counterinsurgency
measures. Pakistan belongs to a list of the most dangerous countries for journalists.
The Committee to Protect Journalists declared Pakistan to be the most dangerous
country for journalists in 2010 and 2011. A United Nations report ranked Pakistan as
the second-dangerous country for journalists in 2012, and Reporters Without Borders
placed Pakistan in terms of safety for journalists in rank 159 of 179 countries. The
Press Freedom Index ranked Pakistan 151 for 2011 2012. In 2012, nine journalists
and one media employee were killed in Pakistan, of a total of 88 journalists
worldwide. In 2011, 10 journalists were killed.

BTI 2014 | Pakistan

Journalists and the media are threatened both by militant groups and by security
agencies. The Tehrik-i-Taliban Pakistan (TTP) threatened to attack all media outlets
who decided to write positively about Malala Yousafzai, a 15-year-old girl who was
shot because she had spoken against the Taliban. Journalists are also threatened by
security forces. Saleem Shahzad, an investigative journalist, was allegedly killed by
security forces in May 2011 because he had worked on sensitive stories, such as the
role of Islamists in the armed forces.

3 | Rule of Law

Separation of powers has for a long time been marred by the political power struggle
between political parties and the military. Since 2008, the Supreme Court, headed by
Chief Justice Iftikhar M. Chaudhry, has become more vocal with various suo moto
initiatives that have challenged the government and the armed forces. The parliament
is generally the weakest state institution. Domestic affairs such as the Swiss Bank
case illustrate that state institutions must struggle for their respective institutional
roles. In this case, the Supreme Court forced the Pakistan Peoples Party-led
government to write a letter to Swiss authorities with the goal of reopening a series
of corruption cases against President Zardari. The government under Prime Minister
Gilani refused this request, arguing that the president enjoyed constitutional
immunity. Therefore, the Supreme Court forced Prime Minister Gilani to step down
on contempt of court in June 2012. The separation of powers in the government has
therefore improved. But the armed forces are still beyond the authority of the
government or the parliament. The Supreme Court enjoys great public respect and is
supported by the main opposition parties in its struggle against President Zardari and
parts of the media. However, this is not because opposition parties actually support
the idea of separation of powers and horizontal accountability per se, but because
they see it as a chance to weaken the government and their political opponents.

Separation of
powers

The judiciary has always been split along political lines, and judges have even
legitimated military interventions with the doctrine of necessity in the past. A number
of judges and lawyers were active in the struggle against General Musharraf. Since
2009, the judiciary under Chief Justice Chaudhry has become more independent.
After a conflict with the government over the nomination of judges, a compromise
was reached in 2010. A judicial commission will propose names of potential
candidates who then have to be confirmed by a parliamentary commission, which
consists of members of both houses and opposition parties. However, the
independence of the judiciary below the level of the Supreme Court is heavily
impaired by de facto pressure from powerful economic and political actors as well as
insecurity caused by crime and high levels of corruption.

Independent
judiciary

The working of the courts is hampered by a lack of resources and qualified personnel,
insufficient territorial operability and scarce resources as well as corruption,

BTI 2014 | Pakistan

10

especially on the lower levels. At the end of 2012, around 1.6 million cases were still
pending in all levels of the courts. Moreover, judges tend to use legal instruments
such as contempt of court against critical views reported in the media. The overload
of the system has promoted a call for speedy justice. This has benefitted the
Pakistani Taliban especially in the Swat Valley, even if public opinion is not in favor
of such groups.
Corruption has increased under the democratic government, and has touched
prominent political personalities such as President Zardari or the son of former Prime
Minister Gilani. The National Accountability Bureau (NAB) is the main institution
that fights corruption, but its ability is limited because of a lack of resources and
political interference. The government has installed a system of ombudsmen, for
instance in the health care sector, to address grievances and malpractice issues. The
Supreme Court and the Election Commission are also involved in investigations of
members of parliament and provincial assemblies over issues of fake educational
degrees and tax evasion. The Election Commission has set up a code of conduct for
the forthcoming election that strictly regulates the use of official resources during the
campaign. In February 2013, the Lahore High Court asked President Zardari to quit
his position as co-chairman of the Pakistan Peoples Party, as his holding the position
ran contrary to the apolitical function of the presidency.

Prosecution of
office abuse

Despite Pakistans civilian government, civil rights are curtailed for many reasons.
Violent conflicts in different parts of the country, an increase in sectarian violence
against religious minorities and the inefficiency of state institutions and security
agencies have severely restricted civil rights.

Civil rights

While there are limited spaces where civil rights are honored, not least thanks to an
activist judiciary, many civil rights violations can be attributed to non-state actors;
and state actors (such as the police and the courts) have been too reluctant defend
these spaces. For example, traditional feudal and tribal structures in rural areas
deprive women, minorities and marginalized groups of basic rights and freedoms. In
parts of rural Sindh and Punjab, feudal landowners maintain their own private
militias, courts and prisons. The tribal segments of the Baluchs and Pashtuns follow
their own traditional legal codes, which are not necessarily in accordance with
modern civil rights. Moreover, religious freedom for minorities is limited because of
the threat of blasphemy charges. In urban areas like Islamabad and Karachi, people
can also be subject to infringements of civil rights by the land mafia.

BTI 2014 | Pakistan

11

4 | Stability of Democratic Institutions

Part of the 18th amendment included a fundamental reform of the interplay between
democratic institutions that has reinstituted, to a large extent, the constitution of 1973.
The executive powers of the president have been stripped so that the office only
enjoys a ceremonial function. The prime minister is the most important political
figure in Pakistani government. Overall, during the review period the performance of
Pakistans parliament was lacking. In February 2013, 176 bills were still pending in
the National Assembly. Democratic institutions such as the presidency and the
Supreme Court constantly struggle with each other, while the armed forces remain
mostly outside civilian control. The provincial assemblies have also not been very
successful, partly because of the countrys instable security situation and partly
because the new responsibilities between the central government and the provinces
in many areas are still not clear.

Performance of
democratic
institutions

Elected institutions are constrained by veto powers, namely landlords and the
military. Recent constitutional changes should strengthen the democratic process
overall. The controversy between the president and government vis--vis the
Supreme Court can also be understood as a conflict over their respective functional
roles. The chief of army staff (COAS), General Ashfaq Kayani, who will presumably
retire in November 2013, has always underlined the professional character of the
armed forces and has publicly supported democratic elections, showing no inclination
for overt political interference. The movement of Tahirul Qadri that challenged the
government in January 2013 has not found support within the main opposition
parties.

Commitment to
democratic
institutions

5 | Political and Social Integration

Pakistans party system is characterized by competition between the Pakistan

Peoples Party (PPP) and the Pakistan Muslim League-Nawaz (PML-N) which
shaped the political landscape after 1988. There are several important regional
parties, including the Awami National Party (ANP) in Khyber Pakhtunkhwa and the
Muttahida Qaumi Movement (MQM), which represents the Mohajiir community of
urban Sindh. Moreover, there are many religious parties such as the Jamiat-i Ulemai Islam (JUI), the Jamiat-i Ulema-i Pakistan (JUP) or the Jamaat-i Islami (JI). Their
constituencies are mainly from urban areas, and in parts of Khyber Pakhtunkhwa and
Baluchistan. Parties are mostly centered on personalities or dynasties, such as the PPP
which is linked to the Bhutto dynasty, or the PML-N which is dominated by Nawaz
Sharif and his family. Inner-party democracy is therefore hardly practiced. New
parties such as the Pakistan Tehrik-e Insaaf (PTI) of Imran Khan and religious parties
like the JI have introduced elections to increase inner-party democracy.
Programmatic issues hardly play a role and inner-party democracy is seldom

Party system

BTI 2014 | Pakistan

12

practiced except for in the JI; election victories are mainly used for political
patronage. The PTI is trying to address issues important to the urban middle class,
but have not yet been successful in elections. Free and fair elections are the exception
rather than the rule in Pakistan. The voter-list manipulation, vote buying and
insufficient control of voting in rural areas are the most common problems.
Pakistan supports a wide variety of non-governmental organizations that focus on a
range of social grievances. However, these NGOs can hardly be described as interest
groups, in the sense of business associations that try to aggregate sector-specific
interests vis--vis parliament. Civil society organizations include well-known
institutions such as the Human Rights Commission of Pakistan (HRCP), the Citizen
Police Liaison Committee, Lawyers for Civil Rights and the Womens Action Forum.
Moreover, many interest groups are supported by the middle classes and are focused
in urban centers. Besides many liberal-leaning groups, there are also many religiously
conservative groups, such as the Majlise Sautul Islam (MSI) which aims to improve
the curriculum in religious schools (madrasahs). The digital revolution has facilitated
the work of such groups. The impact of interest groups on political parties is difficult
to assess because of their strong dynastic character.

Interest groups

There is few if any reliable survey data on the approval of democratic values in
Pakistan. Nevertheless, the democratic protest movements against military rule, the
poor performance of religious parties and the liberalization of the media indicate high
support for a democratic system. So far, political parties do not live up to these
expectations, which may mar the image of democracy in the long-term. Voter turnout,
which was 44.5% in the 2008 elections, may not be a good indicator considering
issues of security in many parts of the country.

Approval of
democracy

There is no reliable survey data on the breadth or stability of social capital and trust
in Pakistan. Anecdotal evidence and few qualitative studies indicate that social capital
is mainly provided by family networks, caste-like structures (biraderi), tribal and clan
affiliations or religious associations. Many NGOs have also contributed to social
capital with their activities. Prominent examples like the Edhi Foundation have turned
into effective service providers. Moreover, the willingness to support the victims of
the 2010 floods has also demonstrated a great deal of solidarity among fellow
citizens. There are a variety of social support programs like Bait-ul-Mal, the Benazir
Income Support Program (BISP) or religious taxes such as zakat which may help to
broaden the idea of social capital in the long term.

Social capital

n/a

BTI 2014 | Pakistan

13

II. Economic Transformation

Question

6 | Level of Socioeconomic Development

Score

Pakistan has still not recovered from the economic and financial crisis of 2008 and
the impacts of floods in 2010. GDP growth increased from 3% in 2011 to 3.7% in
2012; yet these figures are below the government target of 4.2%. Debt has increased
and the devaluation of the rupee against the dollar reached a new high of PKR 100 to
$1 in February 2013. These economic developments have seriously affected the
governments financial room for maneuver.
Development is therefore stagnating on a low level. Pakistan ranks 145 of 187 in the
U.N. Human Development Index (HDI) and is still categorized as a country with low
human development. The Economist Intelligence Unit (EIC) puts Pakistan on rank
of 75 of 80 countries in its index that considers the best place to be born in 2013.
In 2008, World Bank figures stated that 60.8% of the population lived on less than
$2 per day. Newer figures are not available; but considering the countrys prolonged
economic problems, it is rather unlikely that this figure has improved. The rate of
female youth literacy in 2009 was only 61%, which is below Bangladesh. Female
labor participation (above 15 years old) was only 22% in 2010, lower than both India
and Bangladesh. The ratio of female-to-male primary enrollment in 2011 was only
82% and 73% on the secondary level. Both figures are among the lowest in the world.
Pakistan is still characterized by regional disparities in its provinces. Socioeconomic
development lags in Baluchistan and parts of Khyber Pakhtunkhwa. Special
development problems exist in the federally administered tribal areas (FATA)
because of the tense security situation. FATA and Gilgit Baltistan have special
constitutional arrangements which limit state development activities. Moreover,
minorities and marginalized groups like Ahmadis, Hindus, Christians and Sikhs are
even more affected by development deficits.

Economic indicators

2009

2010

2011

2012

161819.0

176477.5

210741.1

231181.9

GDP

$M

GDP growth

3.6

3.5

3.0

4.2

Inflation (CPI)

13.6

13.9

11.9

9.7

Unemployment

Socioeconomic
barriers

BTI 2014 | Pakistan

14

Economic indicators

2009

2010

2011

2012

1.4

1.1

0.6

0.4

Foreign direct investment

% of GDP

Export growth

-3.3

15.7

2.4

-13.4

Import growth

-15.1

4.3

-0.1

10.0

Current account balance

$M

-3993.4

-1354.0

-2234.0

-2072.2

Public debt

% of GDP

61.3

61.7

60.3

62.1

External debt

$M

56328.6

58488.2

60181.8

Total debt service

$M

3478.5

4311.3

2958.6

Cash surplus or deficit

% of GDP

-4.8

-5.0

-6.5

-7.8

Tax revenue

% of GDP

9.3

10.0

9.3

9.8

Government consumption

% of GDP

8.1

8.0

7.9

8.3

Public expnd. on edu.

% of GDP

2.7

2.4

Public expnd. on health

% of GDP

0.8

0.8

0.7

R&D expenditure

% of GDP

0.46

Military expenditure

% of GDP

3.2

3.3

3.1

3.0

Sources: The World Bank, World Development Indicators 2013 | International Monetary Fund (IMF),
World Economic Outlook 2013 | Stockholm International Pease Research Institute (SIPRI), Military
Expenditure Database 2013.

7 | Organization of the Market and Competition

The Planning Commission stated a clear commitment to market based competition in

its Framework for Economic Growth in 2011. Pakistan ranks 105 of 125 countries
on the Global Innovation Index (GII). The government has identified the poor
standards of Pakistani firms in education, training, goods, market efficiencies and
technological readiness. Some 70% of Pakistani firms are classified as small. The
aspiration for business people to expand in scale seems to be low because of the costs
involved. Competition is distorted because of corruption and the special role of the
military, which is the largest entrepreneur in many fields. Because of this special
status, the military is for instance allowed to take land for reasons of national security.

Market-based
competition

General Musharraf initiated a policy of privatization of public sector enterprises

(PSEs). State companies, such as the Karachi Electric Supply Company and Pakistan
Telecommunications Company, have been privatized. However, the privatization of
Pakistani Steel Mills was stopped by the Supreme Court after allegations of
corruption. The Planning Commission has underlined the need for fundamental

Anti-monopoly
policy

BTI 2014 | Pakistan

15

reforms of PSEs in 2011 to increase productivity and to cut down public subsidies.
The industrial sector is not yet open so there is more need for reforms to improve
competitiveness. There may be resistance against such reforms as PSEs are used for
political patronage. These mechanisms also work on the provincial level, where
reforms may not be regarded as urgently necessary.
Pakistan has in recent years liberalized its trade but subsidies for export items like
cotton and leather have remained. According to 2010 World Bank reports, the overall
tariff rate for all products was 14.78%. As a consequence of the 2010 floods, the
World Trade Organization (WTO) approved a waiver for the duty-free access of 75
Pakistani products to the European Union for two years in 2012. Also in 2012, the
European Union granted Autonomous Trade Preferences (ATP) to Pakistan to
support economic reconstruction.

Liberalization of
foreign trade

The Pakistani government finally decided to grant India most-favored nation (MFN)
status in January 2013. India already granted Pakistan MFN status in the 1990s. This
liberalization should normalize bilateral relations and boost trade between the
countries. Most informal trade between India and Pakistan prior to the status change
was organized over third-parties such as Dubai or Afghanistan.
Governments in Pakistan have often stressed the need to introduce interest-free
banking because of religious reasons. Some banks have tried to establish interest-free
banking, but there is no intention to change the overall banking system in this
direction. Banks in Pakistan are mostly state-owned and were not affected by the
2008 2009 global financial crisis. But Pakistani banks have their own problems,
mainly with faulty banks loans, which may require large-scale depreciations because
of non-existing securities. An IMF report 2012 urged the government to look more
closely into the problem of nonperforming loans and to strengthen regulation and
oversight over the banking sector. The bank capital-to-assets ratio remained nearly
constant at 9.7% (2011) compared to 9.8% in 2010. The percentage of nonperforming
loans to total gross loans has further increased, from 14.7% (2010) to 15.4% (2011).
Bank failure may cause contagion effects with highly unpredictable outcomes.

Banking system

8 | Currency and Price Stability

Inflation in Pakistan has increased sharply as a consequence of the global financial

crises, the 2010 floods and the following economic downturn. Inflation has increased
as well as a consequence of rising energy imports. Rising food prices also cause
severe problems for the poorer segments of society. The government has projected
inflation to be at 10.5% for the fiscal year 2012 2013, which was the sixth
consecutive year of double-digit inflation rates. The situation has only slightly
improved since 2009, when inflation was at 13.6%.

Anti-inflation /
forex policy

BTI 2014 | Pakistan

Pakistans economic macrostability has further worsened, with the result that the
country is heading toward another balance of payment crisis. According to the IMF,
the new indebtedness has increased from 7.0% to 7.5% of the gross national product
(GNP). Currency reserves are below $9 billion and foreign direct investment has
declined, mainly because of security issues and infrastructural shortcomings. In
contrast, an increase in remittances can be listed as a positive development. In
October 2011, an IMF assistance package for Pakistan failed to be delivered as the
government was unwilling to introduce reforms, such as a revised general sales tax,
and to expand the tax base by including rural incomes. The GDP/tax ratio has even
fallen from 11% to 9% in recent years, which is among the lowest in the world.

16

Macrostability

9 | Private Property

Private property is protected by both secular and religious law. Despite problems in
rural areas, even Islamic scholars have ruled out large-scale land reforms in favor of
the poor. Land distribution continues to be unequal, with 5% of large landholders
possessing 64% of the total farmland. The privatization of state enterprises that
started under General Musharraf has fostered economic growth. In various cases,
deregulation was accompanied by corruption charges that then brought the process to
a standstill. Corruption of the lower courts or political interference can create
problems in property rights cases. The military enjoys special privileges with regard
to the acquisition of land. Foreign investors, for instance from the Middle East, have
acquired huge swaths of land with legal protections from the state, especially in
Baluchistan. In 2012, it took 21 days and 10 procedures to register a new company,
which was better than an average of 27 days according to the World Banks Doing
Business Index. To register property, in 2012 50 days and six procedures were
necessary, which corresponds with the global average.

Property rights

Because of economic crises and heavy public sector subsides, the government is
promoting more private enterprise. The government plans to reduce its impact in the
energy sector and in infrastructure to make these areas more attractive for private
investment. In recent years, foreign direct investment has decreased over security
concerns and energy issues in many parts of the country. The government has not
been able to diversify and to strengthen small and medium enterprises (SMEs), so
that its focus is often on existing textile companies for export.

Private enterprise

10 | Welfare Regime

Pakistan has developed a variety of social programs. Religious taxes like zakat are
used for social welfare schemes. Larger welfare programs like Bait-ul Mal or the
Benazir Income Support Program (BISP) have always been politicized. Reports about
corruption and the misuse of funds are not uncommon. The allocation for BISP was

Social safety nets

BTI 2014 | Pakistan

17

PKR 70 billion for the financial year 2012 2013. At present, BISP gives cash
assistance of PKR 1,000 to each of some 5.5 million families, which constitutes 18%
of the total population. The program therefore covers nearly 40% of the population
that lives below the poverty line. The organized sector has its own social welfare
scheme for employees.
Pakistani society at large has shown a strong sense of solidarity, despite the countrys
difficult economic situation. This became obvious during the 2010 floods, when
many private and civil society initiatives were started to support victims. In contrast,
there were numerous reports of corruption and malpractice in the distribution of
international assistance by different state agencies.
Expenditure for social and poverty-related programs dropped from 9.3% of total
central government spending in 2008 to 6% in 2011, but increased to 8.2% in 2012.
Public health expenditure was 2.2% in 2010. Because of the 18th amendment, the
management of health care services will be transferred to the provinces in the future.
At present, there are various pilot projects to introduce a national health insurance
scheme in cooperation with private insurance companies, for instance in Khyber
Pakhtunkhwa and Punjab. Because of widespread corruption in the health sector and
limited regulations, the main responsibility for social services remains with families.
Equal opportunity is not an established concept in Pakistani society. The
marginalized role of women and religious minorities limit these groups capability
for upward social mobility. The educational system is split between government,
private and religious schools. Women have lower literacy rates than men, and also
lower school enrollment rates, especially at the secondary level at only 73%. The
socioeconomic situation of religious minorities such as Hindus and Christians is
below the national average, thereby limiting their opportunity for upward mobility.
Moreover, members of religious minorities are barred from some official positions.
Achievement is more dependent on an individuals family background rather than on
merit. The army is an exception, as members from lower-middle classes can also
reach high military positions.

Equal opportunity

11 | Economic Performance

Pakistan as of the review period has not recovered from the economic downturn. GDP
growth is too weak to support long-term development, as the countrys population
growth is estimated at 1.8% per year since 2008. Because of security issues and
infrastructure deficits, the attractiveness of Pakistan as a destination for foreign direct
investment (FDI) has sharply decreased. In 2008, the net inflow of FDI was $5.44
billion; by 2011, FDI had fallen to $1.31 billion. The agricultural sector, the largest
employer in Pakistan, is still characterized by low productivity because of highly

Output strength

BTI 2014 | Pakistan

18

unequal landholdings and the dominance of feudal structures, especially in Punjab

and Sindh. Pakistans economy is still supported by textile exports. The government
has not been able to introduce a policy of diversification of the industrial sector.
Public debt was 60.2% of GDP in 2011, and showed only a minimal decline from
61.6% in 2010. The latest available figure for unemployment was 5.0% in 2008.
However, unemployment figures are expected to be considerably higher by the time
of writing, as a result of negative economic developments and larger participation in
the informal sector.

12 | Sustainability

Most environmental issues still have low priority in public debate, although large
parts of the population are affected by environmental problems. The most serious
issues are decreasing water resources, rising air pollution (especially in urban areas)
and river pollution, which affects human health. There are pollution regulations for
private cars, but trucks and buses are exempt. Sewage systems are mostly lacking,
especially in rural areas, and an overall environmental consciousness on the part of
the population is only slightly developed. The government is not able to pursue largescale investments in environmental projects because of economic issues. In February
2013, the government presented its first National Climate Change Policy.

Environmental
policy

Pakistans educational sector is characterized by low effectiveness and increasing

fragmentation. The children of the societal elite attend expensive and high-quality
private schools while a majority of students attend poorly equipped government
schools; the poor and religious segments of society send their children to the growing
number of religious schools (madrasahs). Because of rising radicalization, especially
after the events of 9/11 and the growing number of students in religious schools, the
government has pursued various reforms to register madrasahs and to improve their
curricula.

Education policy /
R&D

The deficits of the educational sector are evident in a total literacy rate of 55% among
adults in 2009. Literacy levels for women and marginalized groups are even lower.
Total public spending on education was 2.4% of GDP in 2010. As a consequence of
the 18th amendment, responsibility for education will shift more to the provinces,
similar to health care services. Higher education will probably not be included in this
devolution. Since reforms under General Musharraf, there have been successful
efforts to internationalize Pakistans universities. Expenditure in research and
development totals only 0.46% of GDP, a figure that again illustrates again the
governments limited capacity to invest in future-oriented sectors. So far, educational
policy has not made social barriers more permeable but has rather strengthened them
instead.

BTI 2014 | Pakistan

19

Transformation Management

I. Level of Difficulty

Pakistan faces various structural constraints that impede its political and economic
transformation. The armed conflict in Afghanistan has for a number of reasons spread
to a substantial part of Pakistani territory, primarily because of the successive policies
of Pakistani governments. Federally Administered Tribal Areas (FATA), large
territories of Khyber Pakhtunkhwa and Baluchistan, Karachi and even parts of
southern Punjab are now part of the focus of Afghanistan-Pakistan (AfPak) policy.
Pakistan suffered unprecedented flooding in the summer and autumn of 2010, which
affected more than 20% of Pakistans territory. Rail and road infrastructure were
largely destroyed in affected areas, as were crops, houses and entire villages. Adding
to widespread poverty, a lack of efficient state institutions in many rural areas, a
demographic imbalance resulting from decades of massive population growth, a low
level of adult literacy and large-scale discrimination against women in rural areas and
one quickly forms an impression of the daunting tasks faced by President Zardari and
Prime Minister Gilani in the period under review.
Pakistans high level of constraints is to some extent alleviated by a flourishing civil
society in all major cities. The country is home to many NGOs, both domestic and
international. The level of participation in public debate is fairly high in urban areas,
and it extends to all age groups. Aided by a vibrant and untamed private electronic
media, people of all classes and educational backgrounds can read and take part in
criticism leveled against the government and authorities, including the armed forces.
Debate however is hampered by a lack of solid education among many of the newly
mobilized urbanites, and by a lack of trust among people of different political or
religious creeds and viewpoints. In rural areas, the situation is even worse. Here, a
lack of education, the limited reach of mass media and general social constraints
restrain the expansion of the public sphere. In addition, in these areas (which
constitute the largest part of the nation) civil society traditions are extremely weak.
Pakistani politics have always been somewhat confrontational. The initial cleavage
within Pakistani society emerging in the early decades after independence set apart
the middle-class elites of the independence movement from local political forces and
vested interests of western Pakistan (at that time) that had no particular interest in
nation-building or social development. Recurring interference by bureaucratic and

Structural
constraints

BTI 2014 | Pakistan

20

military elites set a new dividing line between pro-establishment and antiestablishment forces. Pakistans political climate is dogged by a culture of distrust,
fostered by repeated coup dtats and an escalation of the terrorist violence that
spilled over from Afghanistan. Although sectarian violence has affected Pakistan for
two decades now, the surge of terrorist violence and suicide attacks of recent years
has no precedence. Additionally, bonds of solidarity between Pashtun tribes on either
side of the Pakistan-Afghanistan border limit the effectiveness of military operations
and border control in that area. The escalation of conflict in the province of
Baluchistan and the deep distrust held by the local population of mainstream
Pakistani society further aggravates the conflict scenario.
The poor performance of the Pakistani state in delivering basic public goods and
services in the education, health care and security spheres is partly compensated by
the flourishing tradition of civil society to a certain extent. National and international
non-governmental organizations (NGOs) often provide education, social services and
legal advice to the marginalized segments of society. The development of electronic
media has further strengthened NGOs advocacy capabilities, for instance by creating
international audiences for the grievances of their target groups. Civil society also
encompasses charity organizations by religious parties or even militant groups, such
as the Jamaat-ud-Dawa (JuD), which is regarded to be the civilian and charity branch
of Lashkar-e-Taiba (LeT), accused of several terrorist attacks vis--vis India. The
activities of these groups in the aftermath of natural disasters such as the 2010 floods
have created fears of rising extremism among affected communities. However, this
has not yet come to pass.

Civil society
traditions

Conflict levels have risen in recent years. Two circles of conflict can be
differentiated: one among the institutions of the political system which fight for
supremacy, and another among militant groups that challenge the political system as
a whole.

Conflict intensity

With regard to the first circle, the review period witnessed several confrontations
between the presidency, the government and the judiciary over the interpretation of
the constitution. The Supreme Court forced the withdrawal of Prime Minister Gilani
as the government refused to write a letter to Swiss authorities to reopen a corruption
case against President Zardari. The Supreme Court has also challenged security
forces over missing persons in Baluchistan.
With regard to the second circle, sectarian violence and the deteriorating security
situation in Karachi have, in addition to the existing conflicts with the Tehrik-iTaliban Pakistan (TTP) in tribal areas and neighboring regions in Khyber
Pakhtunkhwa and the rebellion in Baluchistan, further marred Pakistans security.
Attacks carried out by militant Sunni groups against the Shia minority in different
parts of the country have resulted in hundreds of victims. With some 18 million
people, Karachi accounts for nearly 10% of Pakistans total population and for 57%

BTI 2014 | Pakistan

21

of national tax revenue. Increasing migration has aggravated the already explosive
mixture of gang warfare, land grabs, drug and human trafficking, religious
extremism, political rivalries and tensions between different ethnic communities,
sharpened by extreme poverty, in the outskirts of the city. In 2012, Karachi
experienced its deadliest year in two decades, with more than 2,000 people killed.

II. Management Performance

14 | Steering Capability

The government has shown no planning for the prioritization of political or economic
agendas. Instead, the governments main priority seems to be political survival. The
fight against militants in tribal areas is hampered as neither the army nor the
government wants to take political responsibility. The authorities have also failed to
properly address the energy crisis, with regular load shedding even in the capital,
Islamabad. Energy problems have also led to riots in smaller cities, where the
shortages are much more acute. Another area in which the government has lacked
prioritization was the broadening of the tax base, which was strongly demanded by
the donor community but finally rejected by the government.

Question
Score

Prioritization

In the review period, prioritization was further hampered through ongoing debates
over the proper implementation of the 18th amendment, between the central
government and the provinces. In the health care sector, while central institutions
have first been dissolved, it became clear that for instance, the registration of drugs
could not be managed by the individual provinces but instead requires a federal
agency.
The fact that India was finally granted most-favored nation status by Pakistan, a move
that was also conceded to by the army, can be seen as a positive development.
Pakistans position in international social indices, like the Human Development
Index, specify that the governments implementation of policies is still a major
weakness. Implementation is further hampered by the impact of the 18th amendment
to the constitution. Because the provinces are now also responsible for more policy
fields, some of them are faced with a lack of bureaucratic capacity. Moreover, new
legislative regulations will further slow down implementation. In contrast, provinces
like Punjab are managed relatively well, at least with regard to infrastructure
development.

Implementation

Policy learning is mostly focused on political survival and in the maintenance of

power. One obvious example is the case of President Zardari, who did everything

Policy learning

BTI 2014 | Pakistan

22

possible to avoid a re-opening of a series of corruption cases against him. His efforts
resulted in the demission of Prime Minister Gilani.
In August 2012, the army chief of staff declared that Pakistans main threat comes
from within. This statement was regarded as a major change from the armys previous
security strategy, which focused on external threats vis--vis India. But such changes
should not be overestimated, as the army still refuses to take action against militant
groups such as Lashkar-e-Toiba (LeT). The group is officially banned, but its leaders
are still allowed to hold public speeches. The army is also reluctant to fight the
Afghan Taliban and the Quetta Shura, which have their safe havens in tribal areas.

15 | Resource Efficiency

A high level of corruption and mismanagement shows that Pakistans efficient use of
assets is low. Resource management is further hindered by the politicization of
institutions, which often leads to the creation of new institutions rather than to
strengthening existing ones. The Benazir Income Support Program (BISP) was
established, among other things, to increase the political clout of members of
parliament of the Pakistan Peoples Party (PPP). It would have also been possible to
reform or strengthen already existing social welfare schemes. But these schemes were
considered to be established by the wrong political party. The devolution of powers
following the passage of the 18th amendment will challenge provincial governments
to use assets efficiently.

Efficient use of
assets

As a result of the 18th amendment, which includes among other things the abolition
of the concurrent list, policy coordination is faced with new challenges. Lengthy
negotiations between the central government and the provinces will be required to
demarcate responsibility boundaries in areas such as health, education, labor and so
on. The main coordination body between the center and the provinces is the Council
of Common Interest (CCI) and the Ministry for Inter-Provincial Coordination (IPC).
The Seventh National Finance Commission (NFC) has given the provinces more
financial opportunities to implement their own policies. Policy coordination can also
be hampered by coalition politics. The Muttahida Qaumi Movement (MQM), which
represents the Mohajirs of urban Sindh, has threatened several times to leave the
government or to join forces with opposition parties over specific issues.
Coordination of policies is further complicated by political rivalries between the
ruling party/coalition in Islamabad and opposition parties from the provinces.

Policy
coordination

Pakistan is infamous for corruption. President Zardari is often referred to by

Pakistanis as Mister 10% and has been constantly embroiled in a fight with the
Supreme Court over the reopening of corruption cases in Switzerland, despite his
constitutional immunity. Members of the political elite, for instance the son of former
Prime Minister Gilani, have been accused of involvement in a PKR 7 billion drug

Anti-corruption
policy

BTI 2014 | Pakistan

23

scandal. Bureaucrats and military officers are also involved in various corruption
scandals. Those in the business community also have to deal with demands for
extortion money in addition to general corruption, which in general degrades public
services such as health care and education. The National Accountability Bureau
(NAB) is the main institution in the fight against corruption, but it is often
manipulated on political grounds and restrained by political interference. The
government has also introduced the system of ombudsmen in the health sector not
only to improve performance but also to provide better transparency. Since both
institutions lack adequate funding and qualified personnel, their long-term impact
may be limited.

16 | Consensus-Building

The consensus over democracy has somewhat improved in the review period but
remains fragile, and is likely to be challenged. This consensus is also shared by
moderate religious parties, even if they in general promote a stronger Islamization of
state and society.

Consensus on goals

The military under General Kayani has declared several times that it will not interfere
in the political process and that it is in favor of democratic elections. However, this
does not imply that the government has achieved supremacy over the armed forces.
The army needs to be given political responsibility by the parliament for casualties
in the fight against various militant groups. The army has therefore declared that
parliament should decide whether to pursue a military operation in North Waziristan,
which is regarded as the main safe haven for Pakistani and Afghani Taliban groups.
Some of the Afghani Taliban groups are still regarded as useful instruments by the
armed forces, for strategic designs vis--vis Afghanistan and India.
There is rarely consensus over political goals. While the need for economic reforms
is always emphasized rhetorically, no government is willing to bear the responsibility
for structural reforms. The refusal to implement IMF proposals, which would have
increased the tax base, indicates a continuing hypocrisy by all political parties.
Because of a lack of political supremacy, the army has remained an important antidemocratic actor even though the present leadership shows no inclination toward
open political interference. Landlords and segments of the civilian bureaucracy are
also important anti-democratic actors. More dangerous anti-democratic actors are
militant groups such as the Tehrik-i-Taliban Pakistan (TTP) who have repeatedly
attacked the state and its institutions. The main demands of the TTP are that Pakistan
should end its cooperation with the United States in the war in Afghanistan and that
Shariah law should be introduced in Pakistan. Linked to the TTP are various
religious militant groups that carry out attacks against religious minorities, with the
goal of establishing an orthodox Sunni state. Militant Baluch tribes, which are

Anti-democratic
actors

BTI 2014 | Pakistan

24

separatists and seek an independent state of Baluchistan, can also be regarded as antidemocratic actors.
There are few institutions to conduct peaceful conflict management. Institutionally,
the Council of Common Interest (CCI) acts as the main coordinating political body
between the center and the provinces, as part of the implementation of the 18th
amendment. The judiciary can hardly act as a mediator as it has actively participated
in political conflicts, such as in the conflict between the government and President
Zardari. Radical Islamic groups such as the Tehrik-i-Taliban Pakistan (TTP) or
Lashkar-e-Jhangvi, responsible for sectarian attacks against religious minorities, can
hardly be reconciled. In January 2013, the TTP offered to begin peace talks with the
government but simultaneously has continued its attacks on state institutions.
Previous settlements with Pakistani Taliban groups have not been successful. The
bad economic situation does not allow the government to address economic
grievances.

Cleavage /
conflict
management

In certain urban enclaves and with respect to social NGOs, Pakistan enjoys a high
level of active participation of different civil society groups which address a variety
of social problems. Some of them are politically very vocal. Some examples include
the lawyers movement which demonstrated against General Musharrafs rule, or the
movement of Tahirul Qadri which demonstrated against the government in January
and February 2013. Most civil society groups do not have links to political parties,
are single-issue based and therefore hardly have the potential to influence political
decision-making. One notable exception is the Human Rights Commission of
Pakistan (HRCP). The expansion of electronic media has helped civil society to
broaden its activities. It nevertheless remains difficult for civil groups to influence
policymaking. In the public sphere, they have to compete with the (hidden) power of
interest groups, such as the army or the clergy. Furthermore, the mass media is trying
to shape the political agenda, at the expense of parliament and civil society.

Civil society
participation

There is no policy of reconciliation in Pakistan. Political parties have always

cooperated when it was opportune for political interests. Reconciliation would be
necessary vis--vis religious minorities, which are threatened by the attacks of
militant Islamic groups. In the past, moderate Islamic scholars have cooperated and
passed fatwas which condemned, for instance, suicide bombings. Reconciliation
would also be necessary vis--vis alleged human rights violations of security forces
in Baluchistan, which have resulted in many missing persons cases.

Reconciliation

17 | International Cooperation

Because of the worsening economic situation, Pakistan is increasingly dependent on

the international community. But the experience with reconstruction efforts after the
2010 floods has shed light on consistent problems and irregularities, so that the

Effective use of
support

BTI 2014 | Pakistan

25

effective use of support cannot be regarded as efficient. The creation of the Friends
of Democratic Pakistan in 2008 which assembled the biggest donors and Pakistans
most important international allies, such as the United States and China, in a forum
to coordinate international policies has failed to bring any substantial results or
improvements. Although Pakistan is due for another balance of payments crisis, the
government has preferred not to implement IMF proposals.
Pakistan has achieved some credibility because of its long tradition as a contributor
to United Nations peacekeeping missions. But Pakistan mostly enjoys only limited
confidence on behalf of the international community because of its tacit support and
toleration for militant groups that operate in India and Afghanistan. The main reason
for this issue is the lack of supremacy of the government over the armed forces, which
directs foreign and security policy vis--vis international neighbors. The recent
rapprochement with India and the granting of most-favored nation status may be a
first step to overcome the hostility toward India in the long run. Pakistans reluctance
to break up the safe havens of Afghani Taliban groups in tribal areas and the double
standards vis--vis the peace process in Afghanistan will continue to nurture mistrust
not only with Afghanistan but with most members of the international community.

Credibility

Pakistan is a member of various regional organizations, such as the South Asian

Association for Regional Cooperation (SAARC) and the Economic Cooperation
Organization (ECO), and it enjoys observer status in the Shanghai Cooperation
Organization (SCO). Regional cooperation within SAARC has long been withheld
as Pakistan insisted that the Kashmir conflict had first to be resolved before any
meaningful cooperation with India could start. Because of the altered security
scenario and economic challenges, Pakistan has changed its position and is now
willing to start economic cooperation with India. Although Afghanistan, Pakistan and
India are all members of the South Asia Free Trade Area (SAFTA), Pakistan is still
reluctant to allow direct trade between India and Afghanistan via its territory.

Regional
cooperation

BTI 2014 | Pakistan

Strategic Outlook
The strategic outlook for Pakistan does not leave much room for optimism. Economic and security
issues have worsened in the review period. The countrys next balance-of-payment crisis is around
the corner; structural reforms of the economy overall or of the energy, health care, and education
sectors specifically are long overdue; the countrys tax base has not been expanded; and foreign
direct investment has dwindled as security concerns scare investors away. Attacks carried out by
the Pakistani Taliban, the Tehrik-i-Taliban Pakistan (TTP), have increased, sectarian violence
has intensified, and security in Karachi has worsened. Moreover, the government has not been
able to improve the situation in Baluchistan, despite the existence of reform proposals. Long-term
challenges, such as population growth and the growing youth bulge, are also not adequately
addressed through government policies.
The most serious concerns in Pakistan during the review period are the lack of political will to
introduce reforms and the societal inflexibility that prevents upward social mobility. Members of
the political elite have fallen flat in their duties to encourage economic development, illustrated
especially by politicians refusal to improve tax collection, which would have an immediate impact
on their own resource base. The elite rests on the facts that Pakistan is too big and is armed with
nuclear weapons so thus it is not in the interest of the international community to let the country
fail.
There have been some positive developments during the review period. The implementation of the
18th amendment is still a work in progress, but once in force will shift the countrys political focus
to the provinces. With elections announced for May 2013, this first democratic, governmental
change can also be regarded as a success. But it may not necessarily result in better policies, as the
next government will be confronted with the same structural constraints.
Another positive development was the non-interference of the armed forces in politics, even
though the army remains apart from civilian government control. It has kept its privileges, yet still
needs political legitimacy (which is granted by democratic forces) in the fight against the TTP and
other militant groups, actions which also affect the civilian population. It remains to be seen how
far the next army chief of staff in November 2013 will follow General Kayanis course. The
retirement of Chief Justice Chaudhry in December 2013 may hopefully end the Supreme Courts
controversies with the civilian government. Yet the governments practice of muddling through
on a low level is likely to continue for years to come.
Pakistans next government faces serious challenges. To revive the economy, the energy sector
will require special attention, governance mechanisms have to be improved at all levels and
corruption has to be curbed. Economic reforms should include the broadening of the tax base and
the reduction of subsidies. The new government and the armed forces will need to find consensus
in how to cope with the security situation, especially in Baluchistan and tribal areas. In addition to

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the strengthening of democratic institutions, one challenge will be to complete the process of
decentralization that was started with the passage of the 18th amendment.
To deal with difficult economic and security issues, the next government also has to rethink its
foreign policy, especially vis--vis India and Afghanistan. The main challenge will be to formulate
a coherent foreign policy under the supremacy of the elected government, so that relations with
the countrys immediate neighbors are no longer dominated by the security interests of the armed
forces, or by non-state actors.

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